Description of Flats on Sale Sub-committee
of the Law Reform Commission of Hong Kong
Consultation Paper
Local Completed Residential Properties:
Sales Descriptions and Pre-contractual Matters
Executive Summary
(This Executive Summary is an outline of the Consultation Paper issued to elicit public response and comment on the Sub-committee’s preliminary recommendations. Those wishing to comment should refer to the full text of the Consultation Paper which can be obtained either from the Secretary, Law Reform Commission, 20/F, Harcourt House, 39 Gloucester Road, Hong Kong, or on the Internet at <http: Comments should be submitted to the Secretary by 31 March 2001. References in this Executive Summary to paragraph numbers are to paragraphs in the Consultation Paper.)
Preface
Terms of reference
1.In March 1996, the then Attorney General and the then Chief Justice made the following reference to the Law Reform Commission:
"Should the present laws governing the protection of prospective purchasers and purchasers of completed residential property in Hong Kong in relation to any pre-contractual matters and sales descriptions be changed and, if so, in what way?"
2.The reference refers to "pre-contractual" matters. It covers any sales matters before the time of contract, that is to say, the signing of the formal sale and purchase agreement.
The Sub-committee
Part I - Local uncompleted residential properties
3.The Law Reform Commission's Sub-committee on Descriptions of Flats on Sale ("the Sub-committee") was first appointed in November 1992 to consider the sales descriptions of uncompleted residential properties. The Sub-committee's proposals were largely adopted by the Commission and formed the basis of the Commission report published in April 1995 on the sales descriptions of local uncompleted residential properties entitled, Report on Description of Flats on Sale, ("the First Report"). The Government published the Sales Descriptions of Uncompleted Residential Properties Bill as a White Bill on 7 April 2000. This incorporated the majority of the proposals in the Commission report.
Part II - Overseas uncompleted residential properties
4.In April 1995, the Sub-committee commenced consideration of the second part of their study, namely, the sales descriptions of overseas uncompleted residential properties put up for sale or advertised in Hong Kong. The Sub-committee's proposals were again largely adopted by the Commission and formed the basis of the Commission report published in September 1997 entitled, Report on SalesDescriptions of Overseas Uncompleted Residential Properties ("the Second Report").
Part III - Local completed residential properties
5.This is the third part of the study by the Sub-committee. It covers the sales descriptions and other pre-contractual matters of completed residential properties in Hong Kong.
Sub-committee membership
6.The membership of the Sub-committee (in respect of the third part of its reference) was:
Mr Kennedy WONG Ying-ho(Chairman) / Managing Partner
Philip K H Wong, Kennedy Y H
Wong & Co
Solicitor
Mr Tom BERRY, JP
(Represented by Mr John EDGE, JP, Acting Deputy Director (Legal) of Lands Department from 21January 1999 to 26 August 1999) / Deputy Director (Legal)
Lands Department
Ms Audrey EU, SC
(up to 22 April 1998) / Senior Counsel
Mr Kenneth KWOK Wing-hon
(from 16 July 1999) / Senior Development Manger
Swire Properties Ltd
Mr Andrew LEE King-fun / Principal Partner
Andrew LEE King-fun and
Associates
Architect
Mr LIU Sing-cheong / Managing Director
Hang Cheong Surveyors Ltd
Surveyor
Ms Rebecca PUN Ting-ting
(from 28 July 1999 to 31March 2000) / Principal Assistant Secretary
Housing Bureau
Government Secretariat
Mr Malcolm MERRY
(from 30 June 1998) / Counsel
Ms June TENG
(from 5 October 1998 to 3June 1999) / General Secretary
Real Estate Developers Association
of Hong Kong
Ms Eva TO Hau-yin
(up to 28 July 1999) / Principal Assistant Secretary
Housing Bureau
Government Secretariat
Mr WAI Siu-yu
(up to 31 July 1998) / General Secretary
Real Estate Developers Association
of Hong Kong
Ms Lorna WONG Lung-shi
(from 31 March 2000) / Principal Assistant Secretary
Housing Bureau
Government Secretariat
Mr Martin WONG Kwai-poon / Chief Complaints & Advice Officer
Consumer Council
Mr Marco WU Moon-hoi, JP / Deputy Director/Management
Housing Department
7.Mr Thomas LEUNG Moon-keung, Senior Government Counsel, was the Secretary to the Sub-committee.
Chapter 1
The case for the reference and the scope of deliberations(paragraphs 1.1 – 1.6)
Public responses
8.When the consultative document on local uncompleted residential properties was issued in April 1994, there was strong public demand in the responses for the introduction of controls over sales descriptions of completed residential properties.
Uniform standards for completed and uncompleted property
9.In the First Report, the Commission made a number of recommendations in respect of local uncompleted residential properties. It would create anomalies if some of these recommendations apply only to uncompleted but not completed properties.
Uncompleted flats become completed
10.There are a growing number of first-hand completed residential units being offered for sale. Although these flats have been "completed", they are offered for sale in much the same way as if they were still uncompleted. Prospective buyers may not be given the opportunity to view the particular flats themselves, but instead are usually only able to view one or more show or mock-up flats. As in the case of uncompleted properties, prospective purchasers have to rely largely on the information in the sales literature.
Scope of deliberations
11.The sales descriptions of completed flats are often provided by developers in much the same way as those for uncompleted flats. There is thus an obvious reason to regulatethe sales descriptions and other pre-contractual matters of local completed flats in the first-hand market. The question is whether or not that regulation should extend to the second-hand market.
Views against regulating the second-hand market(paragraphs 1.7 – 1.8)
12.Reservations have been expressed in some quarters at extending the study to the second-hand market and to individual flat owners, on the grounds that the Government hasintroduceda scheme to regulate estate agents, and that it is doubtful whether individual owners would have the necessary time and resources to provide the required information.
13.Unlike purchasers of uncompleted properties, purchasers of second-hand completed flats can view or check the properties. In the second-hand market, purchasers are on an equal footing with the vendors.
Views in favour of regulating the second-hand market(paragraphs 1.9 – 1.12)
14.The Sub-committee takes the view that their terms of reference are wide enough to cover the second-hand market. Purchasers of second-hand completed flats, just like those buying in the first-hand market, are in need of protection. The present law does not provide enough positive protection for purchasers.
15.In the second-hand market, verbal representations are often made by vendors and estate agents. It is difficult and costly for purchasers to verify certain important property information, including the age and size of the property. The property is not always available to prospective purchasers for inspection. Investors may buy property subject to an existing tenancy without the chance of viewing the property.
16.We have therefore come to the view that the present study should cover completed residential properties offered for sale not only by developers in the first-hand market but also those offered for sale by private vendors in the second-hand market.
Definition of "completed residential property"
Recommendation 1
We recommend that "completed residential property" should refer to residential units in respect of which there is an Occupation Permit under the Buildings Ordinance or, in the case of the Housing Authority's Home Ownership Scheme, in respect of which the completion certificate has already been issued by the Director of Housing. This definition should be suitably modified in the case of exempted houses in the New Territories.
PART I – SECOND-HAND MARKET
Chapter 2
The general approach tothe second-hand market
17.In the second-hand market, there rarely is a sales brochure as the vendors are mainly private individuals. Thus, the Sub-committee explores other means of imposing positive disclosure duties on private vendors. It looks at the feasibility of introducing a Vendor’s Information Form. It also considers the possibility of inserting certain standard clauses into the preliminary agreement.
Chapter 3
Brief review of the existing law governing the protection of purchasers of completed units in the second-hand market
18.This chapter takes a brief look at the existing law governing the protection of purchasers in the second-hand market. The purpose is to try to see if the existing law is adequate to protect purchasers. It covers misrepresentation, breach of contract, fraudulent behaviour, obtaining property or pecuniary advantage by deception, conspiracy to defraud, substantive offence of fraud, the Trade Descriptions Ordinance (Cap 362) (paragraphs 3.2 – 3.15).
Existing disclosure requirements under the Estate Agents Ordinance (Cap 511) (paragraphs 3.16 – 3.17)
19.Under section 36(2)(a) to (g) of the Estate Agents Ordinance, estate agents are required by law to provide seven basic property particulars to purchasers. These are:
current ownership and encumbrances,
total or entire area,
year of construction completion,
use restrictions,
unexpired term of Government lease,
term of new lease,
vendor statement on known structural additions or alterations and repairs or improvements.
20.The estate agent is responsible for collecting these property particulars, except for the vendor statement on structural alterations and repairs. Hence, the vendor's existing duty under the Estate Agents Ordinance is confined to the provision of the statement on structural alterations and repairs. But even that vendor statement covers only any information "within the vendor's knowledge". If the vendor is not aware of the structural alterations or repairs, he is not obliged to make any vendor statement.
21.If the property particulars supplied by an estate agent are wrong, the estate agent may be able to rely upon the defence of due diligence. The Estate Agents Ordinance increases the transparency of transactions and provides more sales information to purchasers but falls short of giving them ultimate satisfactory protection.
Lack of vendor's duties of disclosure(paragraph 3.18)
22.The brief review of the existing law in chapter 3 indicates that there are few positive duties, if at all, on a vendor of second-hand property to disclose particulars of the property for sale. In second-hand sales, there is no sales brochure compiled by the vendor. While the vendor is, of course, obliged to provide basic information on the property in the preliminary agreement, it is of little assistance to the purchaser only to obtain this information after the preliminary agreement is signed.
Chapter 4
Disclosure of information by vendors
The Vendor’s Information Form (paragraphs 4.3– 4.12)
23.To overcome the lack of positive disclosure requirements imposed upon vendors, the Sub-committee proposes the introduction of a Vendor's Information Form (VIF). The VIF would be completedby the vendor and should be made available when the unit is put on the market for sale, whether through an estate agent or not. The VIF would contain particulars of the unit offered for sale to a prospective purchaser.
24.The VIF is not a new idea, and similar concepts have either been proposed or are already in place in some overseas jurisdictions. Chapter 4 contains a comparative study of the position in England and Wales, Idaho (USA), Virginia (USA), Ontario (Canada).
The four approaches to imposing positive disclosure duties on vendors(Paragraphs 4.13 – 4.15)
25.The comparative study of overseas practices shows that there can be four approaches to imposing duties of positive disclosure on vendors:
The VIF is purely voluntary. (eg the Legal Information Form proposed by the English Law Society)
The VIF is compulsory, backed by statute. (adopted, for instance, in Idaho, USA)
A flexible statutory approach (this is followed by Virginia in the USA). Under the Virginia Residential Property Disclosure Act, the owner can furnish to a purchaser either a residential property disclaimer statement or a residential property disclosure statement. The residential property disclaimer statement states that the owner has made no representations or warranties as to the condition of the property and the purchaser would be receiving the property "as is".
A code of practice for estate agents (used in Ontario). Under rule 11 of the Code of Ethics of the Real Estate Council of Ontario, a member (ie a real estate broker or salesperson) should consider requesting the seller to complete and sign a Seller Property Information Statement. If the seller refuses to, or is unable to complete the statement, that fact should be stated in the agreement. The statement is not a statutory form but is only part of a code of practice prescribed for real estate brokers and salespersons.
Should the Vendor Information Form be voluntary or compulsory? (Paragraphs 4.42 – 4.43)
26.The Sub-committee considers that the relevant bodies in Hong Kong (such as the Law Society and the Estate Agents Authority) should endeavour to have VIF adopted as market practice on a voluntary basis. The Sub-committee is, however, conscious that a voluntary approach may not work and suggests that the Government should review the situation in due course. If a market practice has not been established voluntarily by then, the Government should introduce legislation requiring the completion of a Vendor's Information Form, at least in relation to newer buildings.
Recommendation 2
We recommend the introduction of a Vendor's Information Form for the sale of completed residential properties in the second-hand market. Relevant bodies in Hong Kong should be encouraged to make the Vendor's Information Form a market practice in the near future. The Government should monitor the situation at some stage later. Unless a market practice can be established by then, the Government should introduce legislation making it compulsory to provide a Vendor's Information Form.
We recommend that a vendor must make available a Vendor's Information Form when his unit is put on the market (whether through an estate agent or not). The proposed Vendor's Information Form should contain at least the following warning clauses and property particulars:
Warning clauses
It is only a summary of the main terms.
It does not explain everything and purchasers should take legal advice.
Circumstances may have changed since the date of the Vendor's Information Form.
The purchaser should inspect the property before making an offer to buy.
The state of repair and physical condition is not given. The purchaser should inspect the property and consult his professional advisors.
Before making an offer to buy, the purchaser should make sure that the required borrowing will be readily available.
It is a legal document and that the vendor will bear responsibility for its accuracy.
Property particulars
The seven property particulars currently to be supplied by estate agents under section 36(2)(a) to (g) of the Estate Agents Ordinance.
Details of the saleable area and any other statutory measurement methods that may eventually be enacted by the proposed Sales Descriptions of Uncompleted Residential Properties Bill.
The availability of services known to the vendor (such as water (fresh/sea), drainage, gas (what kind) and electricity).
The management fees for the current month.
State the amount of Government rent so far as it is possible.
Any notice received by the vendor from the Government, management office, neighbouring properties, or any relevant authority of expenditure requiring contribution from the owners.
State whether there is an owners' corporation and, if so, its name, and the name of the management company.
Any pending litigation known to the vendor affecting the property.
A statement to the effect that the vendor will vacate the property and hand over vacant possession upon completion of the sale and purchase and that the property will then be free from mortgages and subsisting tenancies. However, if there are subsisting tenancies, the terms of those tenancies should be spelt out.
Make reference to any septic tank if it is being used.
State whether or not the vendor is operating under a Power of Attorney.
We recommend that the vendor be required to update the information in the Vendor's Information Form if he knows of changes subsequent to the date of its preparation.
We recommend that if the Government should decide to make Vendor's Information Form compulsory, the Government should embark on a review of the Estate Agents Ordinance with a view to reconciling the disclosure duties of the vendor and the estate agent.
Centralised property information system (paragraph 4.44)
27.At present, different kinds of property information are provided by various Government departments. We consider that there is a need for a single Government body to collate these various kinds of property information so that the public could have access at one location.
Recommendation 3
We recommend that the Administration should consider exploring the option of establishing a centralised property information system.
Chapter 5
Standard clauses of preliminary agreements
Standard clauses for protection of homebuyers(paragraphs 5.2 – 5.6)
28.In Hong Kong, lawyers are usually appointed only after the preliminary agreement has been signed. The result may be that the terms of that agreement are not in the best interests of the purchaser. In order to enhance protection given to purchasers, we take the view that certain standard clauses should be included in a preliminary agreement.
Cooling-off period(paragraphs 5.7 – 5.14)
29.In Victoria, Australia, a cooling-off period applies to the sale of properties worth less than A$250,000. Such a period allows a purchaser time to reflect on the transaction and serves to offset any undue pressure which may have been applied by the vendor or the estate agent.
30.The argument against a cooling-off period that it will fuel speculation would be answered by providing for the forfeiture of a specified percentage of the purchase price in the event that the purchase does not go ahead.
31.Contrary to the approach adopted in Victoria, we see no good reason to confine the benefit of a cooling-off period to purchasers of lower-end properties. We would however like to hear the public's views as to whether any particular class of properties should be excluded from the cooling-off period.